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272 why they did not do so may seem difficult to understand, for that was just the period when a campaign of this kind might have served their purpose. During this time, however, we had repeated indications that the Germans did not take the American entrance into the war very seriously; moreover, looking forward to conditions after the peace, they perhaps hoped that they might soon be able once again to establish friendly relations. In 1917 they therefore refrained from any acts which might arouse popular hatred against them. We had more than one indication of this attitude. Early in the summer of 1917 we obtained from one of the captured German submarines a set of the orders issued to it by the German Admiralty Staff. Among these was one dated May 8, 1917, in which the submarine commanders were informed that Germany had not declared war upon the United States, and that, until further instructions were received, the submarines were to continue to look upon America and American shipping as neutral. The submarine commanders were especially warned against attacking or committing any overt act against such American war vessels as might be encountered in European waters. The orders explained that no official confirmation had been received by the German Government of the news which had been published in the press that America had declared war, and that, therefore, the Germans, officially, were ignoring our belligerence. From their own standpoint such a policy of endeavouring not to offend America, even after she became an enemy, may have seemed politically wise; from a military point of view, their failure to attempt the submarine demonstration off our coast in 1917 was a great mistake; for when they finally started warfare on our coast, the United States was deeply involved in hostilities, and had already begun the transportation of the great army which produced such decisive results on the Western Front. The time had passed, as experience soon showed, when any demonstration on our coast would disturb the calm of the American people or affect their will to victory.

In late April, 1918, I learned through secret-service channels that one of the large submarines of the Deutschland class had left its German base on the 19th of April for a long cruise. On the 1st of May, 1918, 1 therefore cabled to the Department that there were indications that this sub-